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REPORT OF THE PRINCIPAL INSPECTION OF STRATHCLYDE FIRE BRIGADE 2003
OPERATIONS
Fire service operations represent response and intervention at a very wide range of incidents requiring effective co-ordination, planning, research and development.
Overview
102. Key improvements, changes and developments have continued to be made within the field of Operations including the delivery, consideration and implementation of a Transport Review, a revision to the structure of the Operations Directorate, provision of Service Plans and the introduction of Service Standards. Overall, the Operations Directorate appears to be operating efficiently and effectively, however, further improvements could be possible in the following areas:
- Further provision of site specific Operational Tactical Plans.
- The issue of revised Incident Command System.
- Procurement Strategy to include risk assessment criteria.
- Greater collaboration with other brigades and agencies regarding research, development and purchase of operational appliances and equipment.
Operations Directorate - General Policy and Planning
103. There is evidence that there is an approach to the planning process but currently this is not of a structured or consistent basis across all Directorates. A draft Service Plan exists that aims to reflect the Brigade corporate strategy with responsibility for planning, statement of service levels and target setting being devolved to Commands and Departments. Consultation with the Brigade Management Team and other relevant stakeholders should take place prior to submission of individual plans for consideration by the Fire Board. The plans collectively are designed to complement Brigade strategies and it would be useful if these strategies were referred to in a Brigade Strategic Plan.
104. To their credit, the Operations Directorate has adopted a system described as the Draft Corporate Plan with each section of the Directorate having produced Service Plans with clear objectives covering a 3-5 year period. The plans provide details of the various functions of the Directorate that are collectively responsible for maintaining the infrastructure and operational efficiency of the Brigade. Departmental staff are involved in the development of the Plans, which form an integral part of the Operations Directorate Training Days and the monthly Operations Departmental meetings.
105. As yet, the plans are not communicated to all staff in the Brigade although it is the intention to include this information on the Brigade Intranet system. However, as a first step, the Operations Directorate produced a Service Standards document that refers to a number of the objectives contained in the Departmental Service Plans. The document sets out standards and targets of achievement for each section of the Directorate and seeks feedback from their customers on their delivery of services and also on how they can improve the levels of service. Another key element of the planning process is the ability to measure operational performance and, where necessary, to provide benchmarks.
106. In addition to utilising the Statutory Key Performance Indicators the Brigade utilises the Performance Indicators developed by CACFOA. A company has also been contracted to carry out surveys of premises that have been involved in emergency incidents to determine their satisfaction or otherwise with the level of service provided and performance of crews attending.
107. Whilst the actions taken by the Operations Directorate and the Plans produced are commendable a prerequisite to any planning process by Departments is the production and adoption by the Fire Board of a Corporate Plan that determines the Brigade's overall priorities and strategic objectives. In addition, as each Directorate will be producing individual plan/s the Brigade needs to ensure that these are internally consistent and produced as part of a single planning and budgeting process. This matter has already been referred to in the Service Planning section of this report.
Organisation and Structure
108. A review has recently been carried out of the Operations Directorate which, has resulted in a revision to their structure. The Directorate is now split into 7 key service groups comprising:
- Operations (General Services).
- Operations (Data Services).
- Command and Control Centre (Mobilising Services).
- Property Services.
- Fleet Services.
- Information Technology Services.
- Communication Services.
109. In addition to staff transferring to the section from Fire Service Emergency Cover (FSEC) and Vehicle Mounted Data System (VMDS) Groups, the review also identified a need for an increase in the establishment to cope with the ongoing workload. The new structure appears to have adequate staffing with the skills and knowledge necessary to meet objectives but will be closely monitored to determine if there are any deficiencies. To ensure Best Value is being maintained the Brigade may wish to consider introducing a more formal review process to ascertain that management functions are devolved to appropriate levels and that policies and procedures continue to be effective. There is also a need to ensure that communication and information technology services operate within the parameters of the Brigade level MIS outlined earlier in the Strategic Section of this report. The MIS will need to integrate and be in part serviced by the services provided from the Operations Directorate.
Operations and Technical Support
Policy and Planning
110. The objectives in the Service Plan are designed to support the priorities contained in the Firemaster's Reports, First Impressions _ Future Progress and Beyond First Impressions. In addition to a description of the objectives the Plan contains details of the links to corporate aims, funding issues, timescales, resources and reporting and monitoring structures.
Operational Planning
111. The Brigade, as part of the Strathclyde Emergency Co-ordinating Group (SECG), has arrangements in place for the production and revision of major incident and emergency plans for the area. The major incident plans are based on the centrally issued guidance Dealing with Disasters Together. The plans deal principally with the strategic and tactical functions that would require to be implemented to achieve a co-ordinated response to any emergency. A number of Operational Tactical Plans relating to specific risks are also provided within Operational Technical Notes, however in the interests of firefighters' safety management may wish to:
- Carry out further operational risk assessment of risks throughout the Brigade area to determine what premises may require an Operational Tactical Plan.
- Determine a prioritised workload centrally for provision of the Tactical Plans across all Commands and to be provided within definitive timescales.
- Ensure that the plans include measures for damage limitation and minimising the effects of pollution.
- Introduce a formalised procedure to monitor centrally that all operational information remains relevant, valid and accurate.
112. The Brigade may also wish to give consideration to the link between the Home Office Generic Risk Assessments, Brigade Generic Risk assessments, Operational Technical Notes, Major Incident Plans and Operational Tactical Plans, etc. in order to avoid fragmented information being provided to firefighters.
113. Arrangements are now in place to provide for interoperability and equipment compatibility at cross-border incidents. However, following discussion with crews at fire stations regarding radio procedure when attending an incident in the area of another brigade, the Brigade may wish to reassess these arrangements to ensure that they accord with the nationally agreed procedures. The Brigade also arranges joint exercises with adjoining brigades to test their procedures and equipment provision.
114. The revised Incident Command System is still at draft stage. It is understood the procedure is fully developed, that consultation has taken place with neighbouring brigades and that a decision to implement the system is imminent. In the interests of firefighter safety this document should be issued at the earliest opportunity.
115. The Brigade has efficient and effective arrangements for gathering operational information required for firefighting and other emergency purposes which is categorised by weighting to determine the level of information produced for each risk type. The information is now collated in a format that enables easy transfer to the VMDS. The Brigade should ensure that a formal procedure exists for the relevant safety critical information to be shared with adjacent brigades.
116. The Brigade does not have in place a formal procedure to monitor and measure operational performance. This matter has, however, been identified as an objective within the Operation Service Plan. In the interests of operational efficiency this objective should be implemented at the earliest opportunity.
Command and Control Centre
Planning
117. A Service Plan has been produced that covers a rolling 3 year period. The objectives in the Plan are clear, are linked to Corporate Aims and include funding and staffing requirements.
General
118. The joint review between Management and the Fire Brigade's Union of the Command and Control Centre has been completed. The review considered the overall management of the Centre, training requirements and staffing levels. In assessing staffing levels the 'staffing model' referred to in Dear Firemaster Letter 6/1996 was utilised to assist the Brigade in determining the levels of staff required. The report has been submitted to the Management Team for their consideration.
119. Job descriptions are provided for all members of staff with purpose, main duties and responsibilities being clearly identified. Currently the job descriptions are reviewed ad-hoc therefore consideration should be given to carrying out this function on a regularised basis.
120. The Centre has carried out a benchmarking exercise with West Yorkshire Fire Service and Northern Ireland Fire Service that operate the same Command and Control System. The results to date compare very favourably with the other 2 brigades.
121. Local Performance Indicators for passing emergency calls and information to other agencies have not been determined. This task is contained within the Centre Service Plan where it is intended to utilise the Chief and Assistant Chief Fire Officers Association (CACFOA) Output Specifications.
122. The Command and Control Centre has been the subject of a review by Audit Scotland that considered the corporate governance arrangements in place as they relate to the systems of internal control. The report has been considered by Senior Management and overall the Auditors were satisfied that there were adequate controls operating within the Command and Control Centre.
123. The Command and Control Centre has embarked on a Work Life Balance Project that will explore team based self-rostering for watch related staff. The Project commenced in July 2003 with staff consultation. It is intended to run a pilot application commencing September/October 2003. The Inspectorate looks forward to the outcomes of this initiative.
Water Systems for Firefighting
124. The Brigade has efficient arrangements in place for the provision of water supplies for firefighting purposes and adequate arrangements exist for ensuring that hydrants are tested and examined at an appropriate frequency. Quarterly liaison meetings are held with local water authority managers and in addition the Brigade is currently liaising with Scottish Water regarding the provision of a new Service Level Agreement (SLA).
Procurement
Planning
125. As part of the restructuring of the Operations Directorate the Procurement Section now comes within the responsibility of the Finance Directorate. The Service Plan that covers a rolling 3 year period is currently being revised and ultimately will be incorporated within the Finance Directorate Service Plan. The Plan contains the Brigade strategy for procurement along with a profile of the purchasing and stores sections. It does not, however, appear to contain clearly defined risk assessment methodologies. Risk Assessment is an integral part of the procurement process. It is therefore essential that all procurement processes be subject to risk analysis that involves identification, estimation and evaluation, all of which should be fully documented.
126. The objectives in the Plan are clear and contain details of links to corporate aims, funding issues, timescales, resources and reporting and monitoring structures. Objective 1 is the development and publication of an electronic stores catalogue. The first phase of this development is now complete with the catalogue being available via the Brigade's Intranet to Headquarters and the Command and Control Centre. The full benefit of this system will not be realised until access is available to all Fire Stations which is totally dependent upon the urgent need for the provision of a Brigade Wide Information Technology (IT) Infrastructure.
General
127. Following an analysis of the Brigade procurement function in 1996 it was considered that an in-house procurement section would provide a more efficient service in terms of Best Value. The standards of service and performance are monitored and are benchmarked with other Brigades via the CACFOA Purchasing Arrangements Working Group.
128. The Brigade participates in the CACFOA Purchasing Arrangements Working Group and whilst it remains happy to share information with other users regarding research and development activities this is not undertaken on a formal basis or extended into the wider procurement arena. Given that procurement is seen as one of the more obvious Best Value functions undertaken by all organisations that, like fire boards, have the statutory duty the Brigade may wish to consider a more formal arrangement for this function. Ongoing investigations by the Scottish Executive will also highlight the collaborative aspect between brigades and so reinforcing the value of further attention.
129. In identifying that items purchased meet the Brigade's 'User Requirement' goods are evaluated and inspected upon receipt. Currently there is no method of gathering evidence to substantiate that this is being carried out. The Brigade may therefore wish to adopt a more formal procedure for this purpose.
Appliances and Operational Equipment
130. The Brigade has and continues to carry out extensive research into ensuring appropriate equipment and appliances are provided. Recent major projects undertaken by Operations and Technical Support has been the design and purchase of Rescue Pump Ladders that will accommodate the equipment required for both firefighting and rescue operations whilst meeting the requirements of the current Manual Handling Regulations. In addition, a specification and tender documentation were produced for the modification of existing Water Tender Ladders to a Rescue Pump configuration.
131. There is no evidence to suggest that the Brigade has considered the benefits of joint purchasing arrangements with other brigades or agencies for pumping appliances, special appliances and operational equipment. The opportunity should therefore be taken to examine possibilities for joint co-operation with other brigades or agencies for such purchases.
132. The current replacement policy for fire appliances is based upon age (12 years for pumping appliances and 15 years for high reach and other special appliances). The fleet is of a very good standard with the average age of pumping appliances at the time of inspection being 9 years. With the standard of vehicle now being purchased it is essential that replacement is based on a dynamic age profile assessment of the vehicle and not a fixed replacement policy.
133. The Brigade's policies and procedures for the provision and maintenance of Personal Protective Equipment (PPE) have been reviewed. A Review Team carried out substantial research into the future PPE considered necessary for firefighters to carry out their tasks effectively and safely. At the time of inspection a contract had been awarded for the provision of PPE for all operational personnel. It is intended the introduction of the replacement PPE will also coincide with the implementation of a comprehensive recording system covering the issue, use, repair and maintenance arrangements that will include performance monitoring and a lifing policy for replacement.
Maintenance Arrangements
Planning
134. Both Transport and Property Sections have produced Service Plans that are clearly linked to the Brigade's Corporate Priorities. The Transport Section has set 11 objectives which are aimed at meeting the recommendations of the Best Value review that was undertaken in relation to the transport fleet and workshop facilities. The Brigade may wish to consider enhancing the Transport Service Plan by including a policy and strategy for the efficient maintenance of the transport fleet. The Property Service Plan covers a 5 year period that includes a profile of the Section, clearly defined reviews of specific functions each year and key performance indicators that are designed to monitor, audit and assess the performance of the Section. The Plan also has definitive strategic objectives covering station refurbishments, new build projects, volunteer fire stations, dignified facilities and elemental upgrades, etc.
Transport Maintenance
135. In October 2001, Barony Group Limited (external consultants) published their report having completed a Best Value review of the Transport Department. The report was submitted to the Fire Board where it was agreed that the majority of recommendations would be implemented. The major changes involved the creation of a new organisational structure, the appointment of a Fleet Manager and the closure of one workshop with the remaining two workshops adopting a two-shift system. A number of other recommendations centred on training, operating procedures and recording and monitoring systems which, are currently being addressed by the Fleet Manager. The Inspectorate welcomes the positive action taken by the Brigade in addressing the operational aspects of the Transport Department, which already is indicating an improvement in the level of service provided, and look forward to further positive outcomes in the future.
Property Maintenance
136. The Brigade has a well-established Property Section under the control of a Property Manager. The Section is responsible for the provision of property maintenance, property refurbishment, new build projects, upgrades and adaptations along with the provision of facilities management at Brigade Headquarters. Currently the Section manages 4 measured term contracts, 12 grounds maintenance contracts and 25 service contracts. Adequate control measures are in place to monitor reactive maintenance provision carried out by the term maintenance providers and the service contractors involved in the inspection and servicing of installations and items of plant and equipment. The Property Officers carry out condition surveys complemented by specialist advice where necessary and these, along with reports from service contractors, form the basis of the planned maintenance programme.
137. Although architectural and structural engineering design work, etc is carried out currently by unitary authorities, it understood consideration is being given to this matter being reviewed.
138. In order to ensure continued improvement the Section has recently completed a review of the property maintenance provision and contractual management with further reviews of various aspects of the overall property service being carried out between 2002 and 2006.
139. The Section is to be complimented for the adoption of key performance indicators relative to property issues which, are rigorously monitored to ensure the targeted response and performance of the Section plus Contractors is being achieved.
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